A WORLD CLASS TRANSIT SYSTEM FOR THE 360 60 2001 - 2010 5 305 360 67 60 6 E 59 8 60 65 8 360 305 360 8 67 6 6 64 5 59A 59 60 8 6A 64 59 CB 64 V 1564 60 64 65 V 5 6 64 15 E V CB 52L 52 F 6 V 64 7 59A 8 64 7 64 5 65 51 51 4 V 3 67 52 7 59A 43 CB 53A 8 64 7 7 59 5 9 F 52 64 3 52 E 17 F 51 40 64 Piedmont 40 52L 51 4 4 6 3 15 9 40L 7 17 17 11 15 65 64 C 2 8 64 65 64 17 P V 52 67 52L 7 2 F FS 64 15 9 51 V C 67 43 E 88 67 Berkeley 17 40 CB 13 65 40L 59 59A NG 15 12 N 12 V 57 6 51 51 88 12 P 1 57C 2 B 52L 43 12 66 11 13 58 H E 57C BX 58X 57 12 62 L FS 12 RCV 15 43 58 G F 362 57C 57C 57 NL 12 315 57 59 57 57 NL 57C 88 CB RCV N 362 59A P 57 N BX C 11 65 73 6 V 15 15 62 5 65 17 88 2 1 K Z 6 F 14 12 Oakland B 72 72L 11 62 14 59A K 17 6 CB 58 362 Y 57 57C 57 58X 14 11 G 12 FS H 57 Y 362 E 40 51 13 15 40L 40 40L 17 59 12 35X 43 17 6 43 K K 6 315 F 59A 36X 57 57C 73 59 58 82 82L 11 6 S Z Emeryville 72 72L K 15 362 P 14 59A H 15 11 62 35X HX BX 88 F Y C 36X Z RCV 42 C 88 A 36X 35X H 362 Y 88 50 88 O 315 72 K 73 F 82 B 13 A 59A OX 59 314 W 14 58 am 62 82L WA 59 58X 12 Y 82 72L 51 O 59A 42 S 62 A 12 12 pm 42 SA 13 51 82L 50 63 SB 42 62 82 50 A 12 O 51 42 WA 13 13 W W WA 50 50 O OX OX1 314 63 WA

50 325 63 50 50 325 63 WA CB 71 376 69 71 72 El Cerrito 7 67 52L 52 72 74 376 68 H F 6 V 74 76 San Pablo 64 7 59A 69 376 J 8 64 7 64 71 376 78 72L 7 68 67 7 43 5 76 74 JX 68 65 51 51 4 376 69 76 80 FS 7 7 V 90 9 9 52 7 3 LC 376 LA 7 FS 67 59A 15 43 CB 53A 71 37676 71 LB LB1 30Z 68 8 64 7 Overview AC Transit is one of the nation’s premier bus systems, serving over 235,000 riders a day—nearly 71 Phase One of the Plan will provide comprehensive service enhancements throughout the system million passengers a year. AC Transit has a high, yet achievable goal—to provide the East Bay with with special attention in the urban core, where buses will operate at least every 15 minutes. High a truly world-class transit system. For the riders and communities we serve, this goal will not only ridership corridor routes will operate even more frequently—about every 7.5 minutes—and include increase the local transportation choices, but also improve the quality of life, air quality and some limited stop service. Phase One of the Plan also will implement “Enhanced Bus” style capital mobility for our entire East Bay region. improvements on the 10 heaviest corridors in the system, including real-time traveler information at comfortable bus stops. Innovative approaches for “demand responsive service” in lower density To meet this goal, AC Transit is striving to provide fast, frequent, reliable service on a wide variety areas are also planned. of routes with attractive vehicles and an easy-to-use fare structure at affordable levels. By implementing these elements, AC Transit anticipates increasing ridership to about 85 million by Phase Two proposes higher priced capital improvements on the four AC Transit corridors that have 2005/06 and to about 100 million by 2010. We have developed the Strategic Vision Plan to the greatest potential for ridership growth. These improvements, generally described as Bus Rapid demonstrate how—given adequate funding—we can achieve this goal. Transit (BRT), are intended to achieve the speed, frequency, and reliability usually associated with light rail at less than half the cost of most rail improvements. One aspect of our Vision relies on investing in the urban corridors—areas that traditional transportation investment decisions have ignored. From a social equity and Environmental Justice The Strategic Vision, although cost effective in nature, does require additional funds to implement standpoint, as well as concerns for fiscal responsibility and cost effectiveness, this makes sense. We and operate. On behalf of our community, AC Transit is committed to working with our regional want to give our riders and taxpayers the best “bang for the buck.” funding agency partners to implement the plan, and improve the quality of life for East Bay residents.

While most rail investments can cost over $100 per new rider, AC Transit’s proposal has noticeably lower costs—about $3 to $15 per new rider. And, the benefits of these lower cost improvements Introduction can be just as significant, if not more so, as the higher cost alternatives. AC Transit’s long-standing commitment to preserving and improving the quality and quantity of transit service for our East Bay passengers is matched by its financial responsibility to taxpayers and AC Transit’s Strategic Vision Plan was formulated in response to input from riders, elected officials employees. As the largest bus-only transit provider in , the District’s goal is to serve the and local community groups. To address local concerns, achieve significant ridership increases, and greatest number of passengers with reasonable costs and modest fares. enhance mobility in the service area, the Vision proposes a two-phase implementation plan of both capital and service improvements. The return of night and weekend service on our busiest corridors, along with improved equipment and expanded service hours have set the stage for providing more and better transit services to our The Plan features high-frequency Enhanced Bus routes, new attractive low-floor vehicles, on-street rider riders. Beyond these immediate improvements, AC Transit envisions a group of practical strategies amenities, signal-priority on major streets and round-the-clock service. By partnering with our local for a greatly enhanced system that can be implemented as resources become available. This jurisdictions, these projects can become a vehicle for community development and urban revitalization “Optimal Plan” includes service improvements and supportive policies that will encourage many as well, particularly in core areas that have been ignored by others in the push for suburban sprawl. Part more people travelling within the East Bay to choose AC Transit. of our initial advocacy has resulted in a recommendation from the transit industry’s national organization (APTA) for a new category of federal capital funding for Enhanced Bus services in the While additional funds are needed to create and operate the proposed system improvements, when upcoming TEA-21 reauthorization. Changes to the fare structure could provide even greater ridership calculated for total riders or for new riders, the total operating and capital costs are significantly gains, and include maintaining or lowering fares and a reciprocal BART/AC pass. lower than for many transit investments that are currently being funded in the region.

1 2 CB 71 376 69 71 72 El Cerrito 7 67 52L 52 72 74 376 68 H F 6 V 74 76 San Pablo 64 7 59A 69 376 J 8 64 7 64 71 376 78 72L 7 68 67 7 43 5 76 74 JX 68 65 51 51 4 376 69 76 80 FS 7 7 V 90 9 9 52 7 3 LC 376 LA 7 FS 67 59A 15 43 CB 53A 71 37676 71 LB LB1 30Z 68 8 64 7 AC Transit Listens & Responds Prior to developing its Plan, AC Transit made substantial efforts to poll riders, local residents, Flexible routings where possible business and neighborhood groups. This is what we heard from them.

High-frequency services on major arterials Travel time is an important consideration in deciding whether to use the bus.

Adequate round-the-clock service Even with improvements, the existing system will not take large numbers of new riders out of their cars, largely because of travel time. Many existing riders stated that they would not A redesigned network that matches travel patterns and helps meet demand in the use the current service if they had a faster alternative. high-density urban core Transfers are acceptable as part of a fast transit trip. Gradual transition to “Bus Rapid Transit” in the highest ridership corridors with exclusive BART and AC Transit must work as a unified system, especially on integrated fares. bus lanes and frequent service usually associated with light rail

Survey respondents indicated that where trade-offs need to be made, the goal of reducing total Improvements at bus stops, including real-time display of bus arrival times travel time must be paramount. For example, faster service with fewer stops is preferable to slower service with stops closer together, even if this means a longer walk to reach the service. Innovative Tools & Policies The Service Vision At the heart of the practical improvements listed above are two crucial innovative concepts that enliven the AC Transit plan: “Enhanced Bus” and “Bus Rapid Transit” services. In response to this assessment by our riders and potential riders, AC Transit has developed a plan that emphasizes speed, comfort and reliability. Through the proposed plan, the District expects to Enhanced Bus services are designed around street level improvements that reduce travel times, see ridership increase from about 70 million riders currently to about 85 million in 2005 and improve passenger comfort and increase operational efficiency. Such improvements may be the nearly 100 million by 2010. The following elements are central to fulfilling this vision. ultimate improvement in a particular corridor, or they may represent a first step towards the implementation of Bus Rapid Transit. Attractive and comfortable low-floor vehicles Bus Rapid Transit involves more extensive improvements, including bus-only travel lanes, Increasing the frequency of buses to reduce wait time sophisticated station stops, and a coordinated effort to minimize travel time while maximizing passenger comfort and convenience. Reducing delays along routes through such improvements as signal priority Focusing on areas with the greatest opportunity for increasing ridership, the District Plan is Greater frequency of service during midday, evening and owl travel times proposing Enhanced Bus service on 10 heavily used routes and Bus Rapid Transit on the four busiest routes. Table ES-1 summarizes the proposed improvements and shows the projected benefits of each phase of the plan. The level of ridership growth indicated in Table ES-1 is An easy to use, integrated fare system possible only through significant investment in both capital and operating resources. In addition, these expenditures must be supported by coordinated policies both at the District level and in partnership with the jurisdictions served by the District.

3 4 TABLE ES-1: KEY ENHANCEMENTS ON AC TRANSIT’S BUSIEST CORRIDORS

LINE SERVING ESTIMATED RIDERSHIP TOTAL CAPITAL ANNUAL COST COMMENTS IMPLEMENTATION TIME GROWTH COST INCREMENTAL PER OPERATING COST NEW RIDER

ENHANCED BUS SERVICE

San Pablo Avenue • Emeryville• Berkeley• Albany • 800,000 new riders/year Oakland El Cerrito • Richmond• San Pablo

Telegraph/Int'l Blvd. 32% Berkeley • Oakland• San Leandro • 2.3M new riders/year (East 14th) 15% $10,000,000 $2,000,000 $2.92 Increased frequency and enhanced bus improvements will give urban core One and a half years to completion. passengers a much better ride along this 16-mile corridor. Oakland 40% Foothill/MacArthur • East Oakland• San Leandro • 1.6M new riders/year $175,000,000 $2,700,000 $2.64 Enhanced bus service offered in short term, with an ultimate Bus Rapid Transit Two years. improvement. MacArthur/Oakland East Oakland 38% • Oakland Airport • 1.1M new riders/year Airport $41,00,000 $4,800,000 $3.80 Important to addressing Environmental Justice issues in the East Bay. Two years to first significant improvement; four to six years to all improvements.

Shattuck/Alameda Albany 33% • Berkeley• Oakland• Alameda • 1.16M new riders/year $38,000,000 $1,000,000 $2.19 Includes provision of real-time bus arrival information, especially important to Two years to first significant improvement; four to six years to time-sensitive airport market. all improvements. College Ave/University Berkeley 18% • Oakland • 638,000 new riders/year $30,000,000 $1,100,000 $2.03 Combines current Line 43 north of Oakland combined with a corridor running Two years to first significant improvement; four to six years to across Alameda from downtown. all improvements. Hesperian Hayward 50% $20,000,000 $400,000 $2.11 Initial service frequency improvements ultimately in an Enhanced Two years to first significant improvement; four to six years to • San Leandro • 510,000 new riders/year Bus corridor. all improvements. 6th St./Hollis $20,000,000 $300,000 $2.24 Builds on existing approved project increasing frequencies. Two to four years for full implementation of enhanced Berkeley 115% • Oakland• Emeryville • 1.5M new riders/year bus service. Sacramento/Market $17,000,000 $3,200,000 $2.51 New service in a developing corridor will attract substantial new ridership. Two to four years for full implementation of enhanced Berkeley 72% • Oakland • 840,000 new riders/year bus service. Mission/Outer East 14th $23,000,000 $1,400,000 $2.78 Two to four years for full implementation of enhanced Oakland 159% bus service. • San Leandro• Hayward • 525,000 new riders/year $33,000,000 $1,200,000 $4.64 Two to four years for full implementation of enhanced Telegraph/East 14th bus service. BUS RAPID TRANSIT CORRIDORS Improvements Shown are Incremental Over Initial Enhanced Bus Improvements Berkeley 62% Foothill/MacArthur • Oakland• San Leandro • 3.3M new riders/year $175,000,000 $4,100,000 $9.61 Separate bus lanes and other enhancements will further increase ridership. Two years after enhanced bus implementation.

Oakland 13% Shattuck/Alameda • East Oakland• San Leandro • 2.3M new riders/year $234,000,000 $3,900,000 $15.35 Separate bus lanes and other enhancements will further increase ridership. Four to six years for full implementation.

MacArthur/Airport Albany 12% • Berkeley• Oakland• Alameda • 1.66M new riders/year $126,000,000 $2,800,000 $13.55 Separate bus lanes and other enhancements will further increase ridership. Four to six years for full implementation.

East Oakland 13% • Oakland Airport • 1.6M new riders/year $198,000,000 $2,100,000 $17.45 Total implementation of enhanced bus concepts. Four to six years for full implementation.

5 6 CB 71 376 69 71 72 El Cerrito 7 67 52L 52 72 74 376 68 H F 6 V 74 76 San Pablo 64 7 59A 69 376 J 8 64 7 64 71 376 78 72L 7 68 67 7 43 5 76 74 JX 68 65 51 51 4 376 69 76 80 FS 7 7 V 90 9 9 52 7 3 LC 376 LA 7 FS 67 59A 15 43 CB 53A 71 37676 71 LB LB1 30Z 68 8 64 7 A Phased Approach Recognizing that not all improvements can be implemented at once, the District is recommending Shorter wait times between buses (7.5 minutes all day on busiest routes and 15 minute a phased approach that can respond as resources become available. Each implementation phase is service on others) based on specific service deployment guidelines. Bus stop relocation and consolidation Service increases should be concentrated on the most heavily used routes that operate in the most densely populated areas of the District to maximize the number of people using the Traffic signal priority system, generate more fare revenue, and help alleviate air pollution and traffic congestion. Real-time passenger information displays at major stops that show when the next bus will arrive Tr unk routes should offer the highest frequency service and connect with a clear crosstown network at multiple transfer locations Enhanced passenger amenities, such as shelters and benches

Other routes may operate less frequently than trunk routes, with service allocated depending Increased midday frequencies throughout the system, with minimum 15 minute frequencies on the population density and productivity of the route during the midday systemwide

Flexible service strategies need to be developed to provide mobility options to serve passengers Improved owl service (between 1:00 a.m. and 5:00 a.m.) when traditional fixed route service is ineffective Flexible routing to serve low-density, low-ridership areas more efficiently Initial improvements using existing and projected resources are already being implemented and are described in detail in the 2001-2010 Short Range Transit Plan (SRTP). These include Improved fare strategies such as eliminating transfer charges and allowing reciprocity between increased frequency of service on major arterials, i.e. trunk routes, with target frequencies of BART and AC Transit for pass holders 10 minute, and 15 to 30 minute frequencies on feeder routes. Frequencies can improve as future phases are implemented. In Phase One, all routes within the urban core would be served at least every 15 minutes. Higher volume routes, such as Telegraph, International/East 14th, University, Foothill, Shattuck, College and MacArthur avenues would operate every 7.5 minutes, and limited-stop service on several of PHASE ONE: COMPREHENSIVE ENHANCEMENTS THROUGHOUT THE SYSTEM these routes will be added. In addition, this phase includes service increases in the midday and owl Key strategies for Phase One include: period beyond those currently funded. Flexible services will be implemented in this phase to better serve the lower density areas of the District that may not be appropriate for traditional fixed-route Capital and operating improvements to implement Enhanced Bus service in the busiest bus services. corridors, as shown in Figure ES-1, including:

New, more attractive vehicles.

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PHASE TWO: BUS RAPID TRANSIT While Phase One improvements are distributed throughout the system, Phase Two concentrates The following strategies are proposed to enhance the service changes included in the Strategic on the four corridors that have the greatest ridership potential. These improvements are intended Vision Optimal Plan. However, these fare strategies must be considered as part of an overall plan to to achieve the speed, frequency, and reliability usually associated with light rail. Phase Two focuses enhance the system, not as strategies that by themselves will result in significant ridership increases. All of the fare strategies will require significant additional financial resources to implement. on longer term capital improvements that will convert existing travel or parking lanes to bus-only lanes in the busiest corridors served by AC Transit. These are:

Telegraph/International/E.14th Street (Berkeley-Oakland-San Leandro) Fare Policies • Keeping fares at 2002 levels. The Metropolitan Transportation Commission (MTC) expects Foothill Boulevard (Oakland-San Leandro) the region’s transit agencies to periodically adjust their fares to keep pace with inflation. However, AC Transit’s riders are very concerned about further increases in fares above their Shattuck/Alameda (Berkeley-Oakland-Alameda) current level. For this reason, AC Transit hopes to avoid raising fares in the foreseeable future.

• Eliminating transfer charges. Only about 20 percent of the nation’s transit agencies charge MacArthur Boulevard (Oakland-Emeryville) an additional fare for transfers. Since the design of the system encourages transferring, the transfer charge can be a significant impediment to increasing ridership. The transfer charge Bus Rapid Transit is designed around a dedicated, bus-only right-of-way on city streets along with also adds needless complexity to the process of paying fares by slowing down operations. highly developed stations. In addition to providing a high quality bus riding experience, Bus Rapid Transit also focuses on supporting transit-oriented development around stations and on maximizing • Establishing a proof-of-payment system on trunk routes. Buses can operate faster if the comfort and safety of passengers. passengers can use all doors to get on and off the bus. This is made possible by a proof-of- payment fare system in which passengers who already have a pass or transfer could board at In Phase Two, the frequencies on these key routes would improve to every five minutes during peak any door. Everyone paying a cash fare or buying a ticket would receive a free transfer as proof periods, thus allowing riders to travel without thinking about bus schedules or worrying about wait of payment while on board. Roving inspectors would randomly board buses and issue times. Bus stops would be converted into “transit stations” that provide a high level of comfort and citations to those who do not have a pass or a transfer. This system is used on most light rail convenience to passengers. systems throughout North America and Europe. There is no reason it could not be extended to bus services. The San Pablo corridor has been selected for testing of the proof-of-payment Supportive Policies system, with other high ridership corridors to be added later. AC Transit’s Strategic Vision recognizes that service enhancements alone will not result in the • Annual student pass. The proposed annual student pass would be available for sale to all ridership increases or mobility options that the region requires. To maximize the impact of service high school and middle school students in the service area. However, for those who qualify changes, the plan includes a number of supportive strategies, including fare policy enhancements for free school lunches, the annual pass would be distributed free of charge. (A pilot program and strategic partnerships with cities and other agencies served by AC Transit. is currently being developed that will allow students who qualify for the free school lunch program to receive free passes.) The annual student pass would replace the existing mixture of While fare strategies can be used to enhance the District’s goals of increased ridership, setting the tickets, cash fares, and youth passes, thus decreasing the time needed for boarding at schools. optimal level of fares is complex. Higher fares can reduce ridership, and the time required for fare collection is a major source of delay on buses. On the other hand, fares provide about 30 percent of the revenue needed to support AC Transit’s operations.

9 10 CB 71 376 69 71 72 El Cerrito 7 67 52L 52 72 74 376 68 H F 6 V 74 76 San Pablo 64 7 59A 69 376 J 8 64 7 64 71 376 78 72L 7 68 67 7 43 5 76 74 JX 68 65 51 51 4 376 69 76 80 FS 7 7 V 90 9 9 52 7 3 LC 376 LA 7 FS 67 59A 15 43 CB 53A 71 37676 71 LB LB1 30Z 68 8 64 7 Additional Fare Policies A few potential policies would require additional incremental service increases, and a new means to Caltrans and other regional agencies must recognize the special value of a highly functional subsidize them. These are presented as contingent fare policies and include: Transbay bus system, especially as congestion increases due to seismic work on the Bay Bridge. Special funding and planning may be needed to ensure that this system operates at peak • Reducing fares. Lower fares mean higher ridership, but the increase in riders doesn't make efficiency during this difficult period. up for the lower fare, so an additional subsidy would be needed.

• AC Transit/BART reciprocal pass. BART has long accepted Muni passes for travel within Other regional transit agencies, including the ferry system and BART must continue to plan , making BART and Muni part of a seamless payment system. A similar in coordination with AC Transit to move towards a seamless regional transportation network. arrangement in the East Bay would allow customers to buy a pass for rides on AC Transit and BART within the AC Transit service area. This improvement could generate significant new Lifeline services, designed to offer a 24-hour network of transit service throughout the ridership if implemented with the service improvements outlined in the optimal plan. Bay Area, must be planned in consultation with transit operators Because additional service would be needed to complement the fare strategy, this is presented as a contingent item, despite its obvious benefits in helping East Bay residents to perceive and Public/private partnership opportunities should be explored wherever possible to help use AC Transit and BART as part of one seamless system. AC Transit meet the needs of expanding and emerging markets. Other Supportive Policies Full implementation of AC Transit’s vision requires a partnership with the communities we serve. A Regional Priority Implementation of these strategies is largely outside of the control of the District but is a necessary The goals outlined in the Strategic Vision are all achievable if they become a regional priority. part of encouraging transit ridership. On a positive note, implementation of the vision plan is already underway. Funding made available Local Cities and other jurisdictions served by AC Transit must adopt “transit first” policies on through the passage of Alameda County’s Measure B, the 1/2 cent sales tax for transportation, will the District’s trunk lines. These policies include adjustments to signal timing to give preference make it possible for the District to implement the service improvements planned in its Short Range Transit Plan. The Optimal Plan improvements, however, are unfunded. to buses, allowing for signal priority and queue jump lanes that will help speed bus travel times.

While the benefits of the Optimal Plan to the entire region cannot be ignored, AC Transit can Employers in the region should be encouraged to consider “parking cash out” programs that implement the plan only as fast as financial resources become available. Questions of how much, offer their employees the choice of subsidized parking or an equivalent value in subsidy for when, who will pay, all remain challenges to improving the system. Nevertheless, before one can travel by other modes. Where this policy has been implemented, employee vehicle trips have build it, one must dream it. Only then can one understand it and work for it. We have made the been reduced by up to 6 percent. first step; now it must become a regional priority to make it happen.

Transit oriented development should be encouraged around key transit stops and stations to Figures in this document show the fiscal resources that will be necessary to make these plans a increase the number of people who are able to access these high capacity services by walking reality. Working together with local, regional, state and federal partners, we can prioritize those and biking. elements of the Strategic Vision that can be funded or identified for advocacy. With the help of all of our partners, the residents of the East Bay will be able to witness the genesis of a world-class transit system that keeps the East Bay livable and vital.

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Alameda-Contra Costa Transit District

1600 Franklin Street Oakland, CA 94612 817-1717 (+1111) www.actransit.org

August 2002